Gender Responsive and Inclusive Approaches in Municipal Governance

Introduction

Leadership opportunities in the municipal sector are scarce for most women and the presence of systemic barriers fail to provide the conditions for women to enter or remain in politics. Women of diverse backgrounds often face these challenges to a higher degree or with compounding impacts. These systemic issues include, but are not limited to, biases, systematic discrimination, exclusionary policies or practices, and triple-burden responsibilities. 

To address these systemic issues, local governments have a responsibility to create a space in which women feel empowered and supported in their political participation, and in which more women become involved in decision-making and policy development. Gender responsive and inclusive approaches are essential tools to create an inclusive space. They include, among others:

Gender-based analysis for strategic planning
Sex/Gender-disaggregated data collection and analysis
Integration of gender into result statements and indicators for strategic planning
Gender-responsive budgeting and tracking of resources
Gender responsive planning and procurement
Gender-specific programming
Training and capacity development on gender equality
Gender-sensitive communications
Inclusion of gender into policies, operations, administrative instructions and other directives

Municipalities across Canada have started adopting certain gender responsive and inclusive approaches, but many are still unaware of how to integrate them into their local government processes and practices. The purpose of this resource list is to provide a reference for municipal stakeholders who seek to implement similar types of initiatives, and to showcase the diversity in the nature of gender-responsive initiatives. This resource list provides examples of gender responsive and inclusive approaches from forty-seven municipalities included in a recent FCM environmental scan on the topic¹. The scan applied a Gender-Based Analysis Plus (GBA Plus) approach, and includes resources and initiatives that prioritize populations to ensure:

diverse intersectional identities (trans and cis-gendered women, indigenous, black and racialized individuals, 2SLGBTQI+, immigrants/newcomers, persons with disabilities, youth and older adults),
geographic representation across Canada, and
a diversity of municipal functions (including training, policies, strategies, and HR).

They are grouped by types of resources to facilitate the identification of resources for specific needs.

¹ All 35 Census Metropolitan Areas (CMAs) and another 12 municipalities (including non-CMA capital cities and local governments representing smaller and/or rural communities) were included in the environmental scan, carried out in the first half of 2022 by Seasonova on behalf of FCM.

1. Strategies

1.1 Explicit gender equity strategies

Explicit gender equity strategies identify the strategic objectives of a municipality to address gender barriers, promote women in leadership and/or respond to a need. They also provide a common roadmap for different branches of municipal government, and build consensus on an action plan. The following municipalities have developed or are currently developing explicit gender equity strategies. Additionally, the City of Vancouver provides an update on the Phase 1 of their “Women’s Equity Strategy”, demonstrating how progress towards the strategic objectives is tracked.
Calgary, AB	1.1.1 Gender Equity, Diversity and Inclusion Strategy	2019
Halifax, NS	1.1.2 Women and Gender Equity Strategy	In progress
Ottawa, ON	1.1.3 Women and gender equity strategy	2021
Toronto, ON	1.1.4 Gender Equity Strategy Progress	2021
Vancouver, BC	1.1.5 Vancouver: A City for all Women, Women’s Equity Strategy 2018-2028 and 1.1.6 Updates on Women’s Equity Strategy and Trans Gender Diverse and Two Spirit Inclusion Strategy (RTS 1334)	2018

1.2 Gender equity within DEI strategies

Many municipalities have integrated gender within a broader Diversity, Equity and/or Inclusion strategy, as a different approach to achieve a similar goal to those in Section 1.1. The following municipalities’ DEI strategies illustrate the various ways in which this was done. For example, the DEI strategies may list gender as one of the intersectional identities targeted through the strategies and/or identify the barriers faced by women and gender-diverse people in the community.
Abbotsford-Mission, BC	1.2.1 Abbotsford Diversity and Inclusion Strategy	2020
Calgary, AB	1.2.2 Diversity & Inclusion Framework	2011
Charlottetown, PEI	1.2.3 Diversity and Inclusiveness Policy	2020
Edmonton, AB	1.2.4 Art of Inclusion: Our diversity and Inclusion Framework	2019
Gatineau, QC	1.2.5 Ensemble! La politique en matière de diversité culturelle (Together! Cultural diversity policy) (only in French)	2020
Lethbridge, AB	1.2.6 A Welcoming and Inclusive Community Action Plan 2011-2021	2011
Montreal, QC	1.2.7 Solidarity, Equity and Inclusion Plan: So No One Is Left Behind	2021
Oshawa, ON	1.2.8 Diversity and Inclusion Plan	2017
Saguenay, QC	1.2.9 Politique d’égalité, d’équité et d’inclusion (Equality, equity and inclusion policy) (only in French)	2020
Vancouver, BC	1.2.10 Equity Framework	2021
Windsor, ON	1.2.11 Diversity and Inclusion Initiative	2018
Winnipeg, MB	1.2.12 Equity Diversity & Inclusion Policy	2021

1.3 Other municipal strategies that include gender priorities or actions

The following municipalities have examples of other strategies that include gender priorities, such as Indigenous Strategies, Community Safety & Wellbeing, Healthy City, etc. This is a useful approach for mainstreaming gender priorities, particularly in strategies already under development or being revised. The following examples show how gender-responsive approaches can and should be integrated in a diverse range of other municipal priorities.
Calgary, AB	1.3.1 Indigenous Policy and Indigenous Policy Framework	2017
Kelowna, BC	1.3.2 Council priority: Social & inclusive	2019
Moncton, NB	1.3.3 Social Inclusion	n/a
Quebec City, QC	1.3.4 Stratégie de développement durable: pour une ville plus juste, écologique et prospère (Sustainable development strategy : for a more just, ecological and prosperous city) (only in French)	2021
Regina, SK	1.3.5 Community Safety & Well-being Plan	2021
Regional Municipality of Wood Buffalo, AB	1.3.6 Diversity and Inclusion Community Plan	2017
St. John’s, NL	1.3.7 Healthy City Strategy	In progress
Thunder Bay, ON	1.3.8 Thunder Bay’s Community Safety and Well-Being Plan	2021
Manitoba, MB	1.3.9 Aboriginal Strategy	n/a

1.4 Gender, Equity and/or Diversity Lens and Frameworks

Using a gender equity lens or framework to develop a municipal strategy is a common tool, but it does not always end there. The framework can and should be used as a tool for municipal policy and program development, to ensure the strategy translates to effective implementation. The following municipalities have published resources on utilizing a gender, equity and/or diversity lens or framework in developing policy, which can be used or adapted by other stakeholders.
Halifax, NS	1.4.1 Diversity and Inclusion Framework
Oshawa, ON	1.4.2 Equity and Inclusion Lens
Toronto, ON	1.4.3 Equity, Diversity & Inclusion Vision Statement and 1.4.4 Equity lens

2. Governance bodies to support equity

2.1 Explicit Gender Equity Committees, Advisory Groups, or Offices

A useful approach to provide accountability and oversight for municipal action is the creation of a governance body, which may come in the form of a Committee, an Advisory Group or a dedicated Office. These municipalities have created explicit gender equity committees, advisory groups or offices to oversee gender equity principles, initiatives and policy. In some cases, these committees or offices have led the development of gender equity strategies, while in others, they have been responsible for spearheading community initiatives such as consultations, advocacy and training. In all cases, they serve an important accountability function.
Edmonton, AB	2.1.1 Women's Advocacy Voice of Edmonton (WAVE) Committee
Halifax, NS	2.1.2 Women’s Advisory Committee
Hamilton, ON	2.1.3 Hamilton Women & Gender Equity Committee
Montreal, QC	2.1.4 Conseil des Montréalaises
St. John’s, NL	2.1.5 Office of Women and Gender Equality
Toronto, ON	2.1.6 TOnow – Toronto Network of Women
Vancouver, BC	2.1.7 Women's Advisory Committee

2.2 Equity within other Committees, Advisory Groups and Offices

Similar to the strategies in Section 1, many municipalities include gender within a broader mandate of diversity and equity in the creation of committees, advisory groups and offices. For example, gender may be addressed through an intersectional lens while targeting racism, domestic violence, aboriginal issues, or even economic recovery. The following municipalities provide some examples of how to integrate gender within other equity-focused governance bodies.
Belleville, ON	2.2.1 Diversity, Equity and Inclusion Committee
Calgary, AB	2.2.2 Aboriginal Urban Affairs Committee
Calgary, AB	2.2.3 Anti-racism Action Committee
Charlottetown, PEI	2.2.4 The Mayor's Purple Ribbon Taskforce
Corner Brook, NL	2.2.5 Accessibility & Inclusive Community Committee
Fredericton, NB	2.2.6 Office of Community Inclusion and 2.2.7 Anti-Racism Task force
Regional Municipality of Wood Buffalo, AB	2.2.8 Equity & Inclusion Office
Kingston, ON	2.2.9 Equity, Diversity and Inclusion Advisory Committee
Oshawa, ON	2.2.10 Community Diversity Equity and Inclusion Committee (C.D.E.I.C.)
Peterborough, ON	2.2.11 “City hires its first Diversity, Equity and Inclusion Officer” (MEDIA)
Region of Waterloo (Kitchener-Cambridge-Waterloo), ON	2.2.12 Mayor's Task Force on Equity, Diversity and Inclusion
Saskatoon, SK	2.2.13 Diversity, Equity and Inclusion Advisory Committee
St. Catharines-Niagara, ON	2.2.14 Diversity and Inclusion Advisory Committee
Thunder Bay, ON	2.2.15 Anti-racism and respect advisory committee
Toronto, ON	2.2.16 Building Back Stronger: Report of the Economic and Culture Recovery Advisory Group
Vancouver, BC	2.2.17 2SLGBTQ+ Advisory Committee
Victoria, BC	2.2.18 “Victoria City Council approved hiring for EDI-related positions” (MEDIA)

3. Finance and Budgets

While gender equity strategies do not always include budgets, the allocation of budgets to gender equity initiatives is essential to ensure effective implementation. These municipalities have budget resources that refer to gender equity prioritization.
Toronto, ON	3.1.1 Equity Responsive Budgeting Briefing Note And 3.1.2 “Gender should be considered at City of Toronto budget talks: councillor” (MEDIA)	2021 2017
Vancouver, BC	3.1.2 2022 Budget highlights	2022
Victoria, BC	3.1.3 2022 Draft Budget Summary (including notes on EDI office)	2022

4. Capacity development initiatives

4.1 Municipal Staff Training and Learning Resources

Training and learning initiatives for municipal staff can play an important role in furthering gender equity awareness and action, and getting consensus throughout municipal departments. The following municipalities have training resources around gender and other equity themes, including diversity and inclusion, anti-racism, indigenous and LGBTQ2S+ issues.
Oshawa, ON	4.1.1 Inclusive Language Manual
Ottawa, ON	4.1.2 Equity Inclusion Lens Handbook
Region of Waterloo (Kitchener-Cambridge-Waterloo), ON	4.1.3 Corporate Equity & Anti-Racism Training Strategy
Regional Municipality of Wood Buffalo, AB	4.1.4 Anti-racism training and 4.1.5 Indigenous Learning Series
Saskatoon, SK	4.1.6 LGBTQ2S+ Employee training plan -Diversifying the Workplace: LGBTQ2S+ Identities and Inclusive Practices
Winnipeg, MB	4.1.7 Indigenous Awareness Training

4.2 Community Mentorship and Awards

Some municipalities have created programs to identify, mentor and promote women in the community with the explicit goal of increasing women’s participation and leadership in municipal politics. Three municipalities (Calgary, Montreal and Vancouver) have implemented programs to increase women’s participation in municipal politics, by giving youth and women the opportunity to learn through mock council experiences. Another municipality (Toronto) recognizes women in the community for their engagement in local issues and furthering women’s causes.
Calgary, AB	4.2.1 She governs: Participating in Municipal Leadership
Montreal, QC	4.2.2 Cité Elles MTL
Toronto, ON	4.2.3 Pam McConnell Award for Young Women in Leadership and 4.2.4 Constance E. Hamilton Award for Women’s Equality
Vancouver, BC	4.2.5 Women4Politics: A Mock Council Experience for Young Women

5. Policies for Elected Officials, Municipal Employees and Facilities

5.1 Maternity and Parental Leave and Childcare policies

Employee policies that recognize women’s role as caregivers, including maternity and parental leave policies, and childcare policies, can help attract and retain women to municipal leadership and elected official positions, and foster a workplace environment that is favorable to women. The following municipal policies provide examples of such policies.
Calgary, AB	5.1.1 Maternity and Parental Leave for Members of Council Bylaw	2018
Edmonton, AB	5.1.2 Parental Leave for Councillors Bylaw 18243 and 5.1.3 Employee Childcare Policy	2018 2016
Halifax, NS	5.1.4 Parental Accommodation Policy for Elected Officials	2019
Oshawa, ON	5.1.5 Pregnancy and Parental Leave Policy	2019

5.2 Technology

With the objective of fostering a safe work environment free from harassment, the following cities have employee and council policies that govern the use of technology/internet. These may contribute to a more enabling environment for women to succeed in municipal politics.
Calgary, AB	5.2.1 Acceptable Use of City Technology Resources-Members of Council	2003
Digby, NS	5.2.2 Internet Usage Policy	2017

5.3 Diversity and Inclusion Policies

Policies with a goal of fostering diversity and inclusion in the workplace should also include reference to gender equity. These policies set a standard for a favourable work environment for women and gender diverse people, and uphold the responsibility of municipalities as gender-inclusive employers. These municipalities provide examples that may be used as a reference.
Greater Sudbury, ON	5.3.1 Diversity Policy	2014
Guelph, ON	5.3.2 Employee Diversity and Inclusion Plan	2019
Hamilton, ON	5.3.3 Equity and Inclusion Policy	2010 (Rev. 2016)
Region of Waterloo (Kitchener-Cambridge-Waterloo), ON	5.3.5 Corporate Strategy on Equity and Anti-Racism	n/a
Saskatoon, SK	5.3.6 Diversity, Equity and Inclusion Policy 5.3.7 Annual Report 2017	n/a 2017
Sherbrooke, QC	5.3.8 Diversité: Programme d’accès à l’égalité à l’emploi (Diversity: The equal access employment program) (only in French)	n/a
Toronto, ON	5.3.9 Policies, Procedures, Guidelines, Reports on Equity, Diversity and Inclusion and 5.3.10 Workforce Equity & Inclusion Plan	Various 2019
Winnipeg, MB	5.3.11 Equity, Diversity and Inclusion - Human Resources	2018

5.4 Workplace discrimination, anti-harassment and whistleblower policies

Similar to Section 5.3, policies that target workplace discrimination and harassment, and protect whistleblowers, typically also seek to foster a work environment that is safe for women and gender diverse people. The following municipalities provide examples of those policies.
Iqaluit, NU	5.4.1 City of Iqaluit Respectful Work-place Policy (Anti-Harassment Policy)	2017
Ottawa, ON	5.4.2 Bill 168- An Act to amend the Occupational Health and Safety Act with Respect to Violence and Harassment in the Workplace and other matters	2010
Peterborough, ON	5.4.3 Workplace Discrimination and Harassment Policy	2019
Region of Waterloo (Kitchener-Cambridge-Waterloo), ON	5.4.4 Equity Inclusion and Anti-Racism Policy	n/a
Regional Municipality of Wood Buffalo, AB	5.4.5 Whistleblower Policy	2019
Sasktatoon, SK	5.4.6 Policy C01-025 - City of Saskatoon Anti-Harassment Policy and Investigative Procedures for Members of City Council and Senior Administration	2006
Toronto, ON	5.4.7 Domestic/Intimate Partner Violence Policy	2013
Vancouver, BC	5.4.8 Human Rights and Harassment Policy	2009 (Rev. 2016)

5.5 Inclusive/Safe Spaces and Municipal Facilities

These eight municipalities demonstrate how governments can implement policies to create inclusive and safe spaces for women and gender diverse people, including universal washrooms, library spaces, breastfeeding-friendly facilities, and the use of recreational facilities. Further, municipalities can implement community safety initiatives with a goal of reducing violence against women.
Charlottetown, PEI	5.5.1 Gender neutral washrooms	2019
Gatineau, QC	5.5.2 Mise en place de toilettes et vestiaires universels (Installation of universal toilets and changing rooms) (only in French)	2021
Hay River, NWT	5.5.3 “Hay River library strives to make inclusive space during Pride” (MEDIA)	2021
Kamloops, BC	5.5.4 “Going gender neutral at Kamloops City Hall” (MEDIA)	2021
Kitchener, ON	5.5.5 BE U Swim program for trans and non-binary individuals (MEDIA)	n/a
Moncton, NB	5.5.6 Breastfeeding Policy	2017
Saint John, NB	5.5.7 Gender Equity within Ice Time Allocation and Management Policy (Arenas)	2020
Winnipeg, MB	5.5.8 The Winnipeg Safe City Initiative and 5.5.9 Achievements & Supported Interventions	2013 2020

6. Gathering Data: Surveys, Census, Public Consultations

Information gathering and data collection help inform policies, strategies and community programming to ensure effectiveness. Municipalities have collected data from their workforce, from the community and through secondary research, and these municipalities provide examples of surveys/census, panel discussions, and community consultations.
Calgary, AB	6.1.1 City of Calgary Annual Corporate Employee Survey	2021 (and past biennial surveys)
Ottawa, ON	6.1.2 Women and Gender Equity Strategy Engagement Sessions and 6.1.3 Survey (Phase 2)	2022
Region of Waterloo (Kitchener-Cambridge-Waterloo), ON	6.1.4 Workforce census	2019
Regional Municipality of Wood Buffalo, AB	6.1.5 Equity and Inclusion: Employee Census	2020
St. Catharines-Niagara, ON	6.1.6 Niagara Priority Profiles	2021
Toronto, ON	6.1.7 Gender Equity Strategy Consultations	2021-22
Vancouver, BC	6.1.8 City of Vancouver Employee Benchmark Survey - Preliminary Results	2021
Windsor, ON	6.1.9 Workforce Census	2018

7. OTHER: Community Programs and Outreach with a Gender Lens

This section lists initiatives that seek to create a welcoming for women and gender diverse people in the community. They do not directly seek to create a welcoming environment for women’s participation in municipal politics and leadership, but rather focus on the broader municipal constituency.

7.1 Campaigns and Activism

Promoting gender equity issues through community events and campaigns is a way for municipalities to engage women and gender diverse people, and to communicate the municipalities support for marginalized and vulnerable populations. These municipalities provide examples of such campaigns.
Brantford, ON	7.1.1 City of Brantford flips the script to celebrate International Women’s Day	2022
Charlottetown, PEI	7.1.2 "Make it Your Business" video series - Family Violence & Prevention	n/a
Dawson City, YK	7.1.3 Yukon Pride Festival (Pride Week in Dawson city)	2020
Edmonton, AB	7.1.4 Gender Based Violence and Sexual Assault Prevention Initiative	2018
Halifax, NS	7.1.5 International Women’s Day	2022
St. John’s, NL	7.1.6 International Women in Cyber Day	2021

7.2 Housing and Homelessness

Some municipalities have identified gender equity as an important issue within housing, homelessness and economic development priorities, targeting women and gender diverse people in those initiatives. The following provide examples for including gender equity within those strategies.
Iqaluit, NU	7.2.1 Iqaluit City Council Allocates Funds for COVID-19 Homelessness Response (including for women’s shelters)	2020
Moncton, NB	7.2.2 Moncton’s Community Implementation Plan for Affordable Housing	2019
Whitehorse, YK	7.2.3 Safe at Home: A Community-Based Action Plan to End and Prevent Homelessness in Whitehorse	2017

7.3 Immigration

Similarly, gender equity dimensions can be recognized in newcomer programming, and acknowledging the differences in experience for women and gender diverse people who immigrate. The policies from these municipalities provide examples for how to integrate a gender lens in immigration programs.
Kamloops, BC	7.3.1 Women In Wellness: Initiative for Newcomers	2021
Trois-Rivieres, QC	7.3.2 Politique d’accueil, d’intégration et de rétention socioéconomique des nouveaux arrivants (the Policy for the Welcoming, Integration and Socioeconomic Retention of Newcomers) (only in French)	2014

7.4 Indigenous initiatives

The intersectional identity and unique experience of indigenous women is acknowledged in community programming from these two municipalities, namely with regards to missing and murdered indigenous women and girls. Saskatoon’s report identifies options for how the City can respond to the Calls for Justice contained in the Final Report of the National Inquiry into Missing and Murdered Indigenous Women and Girls, and serves as a reference for other municipalities looking to integrate those findings into municipal policies and programming.
Corner Brook, NL	7.4.1 Missing and Murdered Indigenous Women and Girls Commemorative Garden	2021
Saskatoon, SK	7.4.2 Indigenous Women & Girls and Two-Spirit People (IWG2S) - Coming Home Report	2021

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